Effectiveness of dialogues between Swedish FSC forest managers and Sámi reindeer herders

In Sweden, FSC certificate holders conduct forest management in the same area used by the Sámi—Indigenous Peoples in Sweden—for their traditional reindeer herding activities. FSC Sweden’s national forest stewardship standard (NFSS), which is based on the principle of Free, Prior, and Informed Consent (FPIC), plays a key role in facilitating landscape sharing between the two parties. Assurance Services International (ASI) conducted an investigation into the effectiveness of the NFSS in fostering dialogue and preventing disputes between Sami reindeer herders and FSC forest management certificate holders in northern and central Sweden. 

This investigation was initiated because of an increase in complaints and incidents ASI recorded since 2016 regarding disputes between Sámi reindeer herders and FSC forest managers. Stakeholders have voiced their concerns about the impact of forest management (FM) activities like timber harvesting and road building on the reindeer herding activities of the Sámi. 

Through this investigation, ASI and FSC sought to understand if the normative changes in the latest version of Sweden’s NFSS, effective from 2020, have improved the dialogue between the Sámi reindeer herders and FSC certificate holders, thereby resulting in a sustained reduction in disputes between the two parties.  

Background 

 The Sámi are Indigenous Peoples who practice reindeer herding, which is rooted in their traditional cultural practices. The Swedish constitution recognizes their rights to practicing reindeer herding. The reindeer herders belong to different Sámi villages, which are administrative and legal entities as well as geographical areas. However, the land on which Sámi practice their reindeer herding in Sweden is owned by the Swedish State, private companies, or individual smallholders. 

The primary food sources for the semi-domesticated reindeer are ground lichens and arboreal lichens that grow in pine and spruce forests. These lichen-rich forests often possess timber characteristics desirable for harvesting by FSC certificate holders. The primary source of disputes between FSC certificate holders and Sámi reindeer herders lies in the impact of forest management activities on the pasturable areas needed for reindeer herding.  

Reindeer husbandry is carried out over nearly 50 per cent of Sweden's surface, much of which is certified under the Swedish NFSS. The Swedish NFSS recognizes that FPIC is required where forest management activities affect Indigenous Peoples’ rights and resources. 

The Swedish NFSSincludes a procedure for dialogue called ‘participatory planning’ (samplanering in Swedish). The participatory planning process between FSC certificate holders and Sámi reindeer herders aims to facilitate dialogue about landscape sharing.  

Methodology 

ASI conducted a literature review that included sources like the ASI database of complaints and incidents, publicly available reports, articles, blog posts, peer-reviewed research, and media coverage. ASI also analysed public audit reports of FM certificate holders, and the protocols of a body established by FSC Sweden to review disputes between Sámi representatives and certificate holders. 

Additionally, ASI conducted in-person interviews with representatives of eight different Sámi villages in Norrbotten, Vasterbotten and Jämtland counties. Representatives of five FM certificate holders were interviewed. Two certification bodies were interviewed as well, in addition to members of FSC Sweden and five independent experts on reindeer husbandry, Sámi legal rights, and biodiversity conservation.  

Key findings 

The number of incidents, complaints, and disputes registered with ASI and FSC have reduced with the implementation of the latest version of the Swedish NFSS. However, stakeholders continue to express concerns through public platforms like the media, reports, blogs, and social media.  

Some of the key findings of this investigation were: 

1. Sámi villages and certificate holders have strong and persistent differences in opinion about the impact of forest management on the quality of reindeer pasture. This has led to several disputes, many of which were made public in the Swedish and international press. 
2. The participatory planning process introduced in the latest version of the Swedish NFSS has improved communication between certificate holders and the Sámi reindeer herders. However, it is considered to be a complex and time-consuming process. Suggestions for improving the efficacy of the process include: 
   • The normative provisions in the NFSS should establish more explicit instructions for certificate holders to consider key reindeer pastures as sites of particular importance. 
   • The process currently focuses on short-term and operational aspects. It is suggested that the cumulative changes to the landscape brought about by 70 years of industrial forest management should be considered. 
   • Involving the Sámi reindeer herders in the development of forest management plans from the outset could enhance the process, allowing for more systemic adaptations to meet their needs. 
   • The process sets equal expectations on the capacities of the participating parties, however, the Sámi villages have substantially less administrative resources. Recognising and addressing their unique administrative challenges can lead to more effective collaboration. 
3. In the early stages of participatory planning it is possible for Sámi villages to withhold FPIC, and they are doing so as a means to reduce logging pressure on forests they consider key for reindeer husbandry. Certificate holders claim this is leading to significant reductions in the planned logging activities. 
4. Certificate holders may, as a last resort, commence logging without FPIC, but only under certain conditions. Reaching this stage is rare, as certification bodies and the FSC Sweden Dispute Resolution Committee can require certificate holders to return to participatory planning if the process was not completed in good faith by either party. However, Sámi village representatives interviewed in this investigation said that if certificate holders commence timber harvesting without FPIC, the villages will initiate public campaigns against them. 

ASI’s recommendations to FSC 

During the revision of Sweden’s NFSS, ASI recommends that FSC: 

• Include indicators to identify sites of importance for Sámi livelihoods as High Conservation Values. Introduce provisions that stipulate the cessation of forest management operations when a “Dispute of substantial magnitude” affects the legal or customary rights of Indigenous Peoples.  
• Revise concepts that affect the ability of Sámi reindeer herders to exercise their right to withhold FPIC.  
• Consider the possibility of making financial resources available to Sweden’s Sami villages to support and enhance their engagement in multiple participatory planning processes.  
• Organize dialogues with the Sámi to discuss conditions under which they would feel comfortable sharing information that could inform participatory planning processes and thereby build more trust in the process.  

To read more about this investigation—purpose, methodology, findings, and recommendations—refer to the public summary of the investigation report.  

Next steps 

FSC is exploring ways to improve dialogue and constructive engagement between the Sami reindeer herders and FSC certificate holders in the future. Some initiatives are already underway: 

1. An investigation on the effectiveness of the NFSS requirements around FPIC to provide more concrete input to the revision of the standard. 
2. Organization of annual meetings between the large forest owners and the Sámi Reindeer Herding Association to discuss the challenges and learnings from implementing NFSS requirements, both indoors and in the field.